Assessing the Effects of the WTO Agreement on Textile and Clothing on the African Growth

and Opportunity Act

Dr. Laurie-Ann AgamaDirector for African AffairsOffice of the United States Trade Representative

Introduction

Changes are afoot in the world cotton, textile, and apparel markets requiring all involved in this value chain to reconsider their approaches.

My objective here is to provide some of the U.S. policy context in which these changes are taking place and some perspectives on the unfolding situation from where I sit in Washington.

AGOA Is A Success

Increasing two-way trade with Africa

Diversifying range of products traded

Supporting reform efforts in Africa

Generating new investments

Promoting cooperation and development

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End of Quotas

Everyone here aware that the end of global apparel quotas under the MFA/ATC is having a profound impact on international trade in textiles and apparel.

Read reports in the press about factories that have closed in the Sub-Saharan Africa region, and rumors of others that are in serious trouble.

At the same time already seen U.S. apparel imports from China rise dramatically in the first quarter of 2005, especially in key product areas in which African producers compete, such as cotton trousers and knit shirts.

End of Quotas

In the first quarter 2005, despite stiffer competition, total apparel imports from AGOA countries was down slightly over the same period in 2004.

Apparel imports were up for some countries – Botswana, Madagascar, Kenya – during this period.

Open question is whether AGOA producers will be able to retain their market share as production shifts.

End of Quotas: USITC Study

China is expected to become “the supplier of choice” for most U.S. importers because of ability to make almost any type of textile or apparel product at any quality level at a competitive price.

An important finding for AGOA is that there may be exceptions to these trends, particularly at the firm level, reflecting the importance of relationships between apparel importers and their suppliers and the efficiency, flexibility, and experience of these suppliers, particularly in niche market production.

Overall, there is a finding that the market shares of a number of suppliers are expected to decline, including those in sub-Saharan Africa, but also in Asia, the Western Hemisphere and the Middle East.

End of Quotas: COMESA Study

Studies like this are important and need to be taken into consideration, but they are not destiny.

Indeed, a more recent USAID-sponsored study by

COMESA provides some grounds for optimism.

That report found that continuing tariff advantage that AGOA provides for beneficiary countries can help some African producers remain competitive and retain their market share in certain apparel products.

End of Quotas

Also, we expect overall U.S. demand in the apparel sector to increase with the end of quotas. So if African producers can retain their market share they even do better in a post-quota environment.

The medium- to long-term impact of the end of quotas on African countries will be affected by a number of variables, which can be grouped into two categories:

– external variables that African governments and producers have no or limited control over – such as decisions on pending and future safeguard petitions in the United States and EU

– variables that they have greater control over – such as policy decisions and business measures to improve the competitiveness of African producers.

Safeguards

African apparel producers have shown great interest in recent safeguard measures announced by the United States.

Indeed, these measures will provide significant, near-term, but temporary restraints on Chinese imports in the subject product areas.

There is no guarantee, however, that these measures will positively impact African producers, who face competition from many other countries, too.

Meeting the Challenges

There is little African producers can do to influence external variables. But, other variables are in their power to control or influence.

First, make the most of AGOA, which continues to give producers in eligible countries a significant tariff advantage over most other producers.

To date, most AGOA exports from the region occur in just one rules-of-origin category – the use of third country fabric – and in a limited range of products.

Development of an integrated regional raw material, yarn, and fabric production base will make AGOA producers more competitive in the long-run, especially given the September 2007 expiration of the third country fabric provision.

Meeting the Challenges

AGOA provides incentives for use of regional fabric, including a vastly undersubscribed program cap for apparel incorporating regional fabric.

Most studies say that greater vertical integration and cross-border production-sharing would also help to keep more value-added production -- and jobs -- in the region.

Regional producers can make the most of AGOA trade benefits, including through diversification of the product base and adoption of new marketing strategies.

Meeting the Challenges

Of course, AGOA does not place any quantitative limits at all on apparel made of U.S. fabric.

While we recognize that cost factors limit the application of this provision, it is something that African producers should examine more closely, especially as the expiration of the third country fabric provision approaches.

Also, AGOA provides duty-free benefits for thousands of products beyond apparel – virtually everything that Africans produce.

Meeting the Challenges

Second, the governments and private sectors in AGOA countries should work together to find ways to remove existing impediments to export and to decrease the costs of production.

What needs to be done will vary from country to country but could include:

– transport regulations– utility policies– customs clearance and improved trade facilitation– access to bank credit – liberalization of telecommunications and financial services

Meeting the Challenges

Governments could also examine whether there are tariff and/or tax barriers in place that are inhibiting the export sector.

Such reforms and market-friendly policies are also very much a part of the underlying purpose and premise of AGOA.

Meeting the Challenges

The United States stands ready to assist AGOA countries and producers as they tackle these challenges.

The Presidential Initiative – TRADE – established three regional trade hubs, in Ghana, Kenya and Botswana, to help African producers improve their marketing and their competitiveness.

We also look forward to continuing the dialogue on this and other trade and investment topics at the upcoming AGOA Forum in Dakar, Senegal in July.

As at previous Forums, there will be parallel programs for government, the private sector, and civil society in Dakar.

Conclusion

In closing, let me say that while I recognize the enormous challenges ahead as African producers seek to weather these changes, I am convinced that the African textile and apparel sector can survive and even thrive in these new circumstances.

Look how far they have come already. Would you have believed five years ago, prior to the enactment of AGOA, that Africa would double its share of the U.S. imported apparel market?

Conclusion

That 15 sub-Saharan African countries would be exporting apparel to the United States?

That there would be the start of a serious effort in Africa toward vertical integration of the cotton-to-apparel value chain?

That Kenya, for example, whose apparel industry faltered in the 90s, would rebound and once again become a player in the regional apparel trade?

It is their entrepreneurial spirit, their resilience, and their commitment to success that has made this happen, along with a timely boost from AGOA.

I am convinced that they can continue to succeed.